[Federal Register Volume 79, Number 34 (Thursday, February 20, 2014)]
[Proposed Rules]
[Pages 9643-9645]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-03299]

Proposed Rules
                                                Federal Register

This section of the FEDERAL REGISTER contains notices to the public of 
the proposed issuance of rules and regulations. The purpose of these 
notices is to give interested persons an opportunity to participate in 
the rule making prior to the adoption of the final rules.


Federal Register / Vol. 79, No. 34 / Thursday, February 20, 2014 / 
Proposed Rules

[[Page 9643]]


10 CFR Part 431

[Docket No. EERE-2014-BT-TP-0006]
RIN 1904-AD16

Energy Conservation Program for Certain Commercial and Industrial 
Equipment: Test Procedure for Commercial Packaged Boilers

AGENCY: Office of Energy Efficiency and Renewable Energy, Department of 

ACTION: Request for information (RFI).


SUMMARY: The U.S. Department of Energy (DOE) is initiating a rulemaking 
and data collection process to consider amendments to DOE's test 
procedure for commercial packaged boilers. This rulemaking is intended 
to fulfill DOE's statutory obligation to review its test procedures for 
covered products at least once every seven years. As part of this 
process, DOE is considering the potential for adoption of part-load 
efficiency measurement as part of this test procedure rulemaking for 
commercial packaged boilers. To help inform the test procedure 
rulemaking, DOE has identified a variety of issues on which it is 
seeking comment, as outlined in this document; these issues mainly 
concern part-load operation and efficiency, appropriate operating 
conditions for both part-load and full-load operation, and the 
integration of part-load measurements into the applicable energy 
efficiency metric. Although DOE welcomes comment on all aspects of its 
test procedure, DOE is particularly interested in receiving comments 
and data from stakeholders and the public on these topics.

DATES: DOE will accept written comments, data, and information on this 
document, on or before March 24, 2014.

ADDRESSES: Interested persons are encouraged to submit comments 
electronically. However, interested persons may submit comments, 
identified by docket number EERE-2014-BT-TP-0006 or Regulation 
Identifier Number (RIN) 1904-AD16, by any of the following methods:
     Federal eRulemaking Portal: www.regulations.gov. Follow 
the instructions for submitting comments.
     Email: [email protected] Include 
docket number EERE-2014-BT-TP-0006 and/or RIN 1904-AD16 in the subject 
line of the message. All comments should clearly identify the name, 
address, and if appropriate, organization of the commenter. Submit 
electronic comments in WordPerfect, Microsoft Word, portable document 
format (PDF), or American Standard Code for Information Interchange 
(ASCII) file format, and avoid the use of special characters or any 
form of encryption.
     Postal Mail: Ms. Brenda Edwards, U.S. Department of 
Energy, Building Technologies Office, Mailstop EE-5B, 1000 Independence 
Avenue SW., Washington, DC 20585-0121. If possible, please submit all 
items on a compact disc (CD), in which case it is not necessary to 
include printed copies.
     Hand Delivery/Courier: Ms. Brenda Edwards, U.S. Department 
of Energy, Building Technologies Office, 6th Floor, 950 L'Enfant Plaza 
SW., Washington, DC 20024. Telephone: (202) 586-2945. If possible, 
please submit all items on a CD, in which case it is not necessary to 
include printed copies.
    Instructions: All submissions received must include the agency name 
and docket number or RIN for this rulemaking. No telefacsimilies 
(faxes) will be accepted. For further information on the rulemaking 
process, see section III of this document (Public Participation).
    Docket: The docket is available for review at www.regulations.gov, 
including Federal Register notices, comments, and other supporting 
documents/materials (search EERE-2014-BT-TP-0006). All documents in the 
docket are listed in the www.regulations.gov index. However, not all 
documents listed in the index may be publicly available, such as 
information that is exempt from public disclosure.
    A link to the docket Web page can be found at: http://www1.eere.energy.gov/buildings/appliance_standards/product.aspx/productid/74. This Web page contains a link to the docket for this 
document on the www.regulations.gov site. The www.regulations.gov Web 
page contains instructions on how to access all documents, including 
public comments, in the docket.

FOR FURTHER INFORMATION CONTACT: Mr. James Raba, U.S. Department of 
Energy, Office of Energy Efficiency and Renewable Energy, Building 
Technologies, EE-5B, 1000 Independence Avenue SW., Washington, DC 
20585-0121. Telephone: (202) 586-8654. Email: [email protected].
    Mr. Eric Stas, U.S. Department of Energy, Office of the General 
Counsel, GC-71, 1000 Independence Avenue SW., Washington, DC 20585-
0121. Telephone: (202) 586-9507. Email: [email protected].
    For information on how to submit or review comments, contact Ms. 
Brenda Edwards, U.S. Department of Energy, Office of Energy Efficiency 
and Renewable Energy, Building Technologies, EE-5B, 1000 Independence 
Avenue SW., Washington, DC 20585-0121. Telephone: (202) 586-2945. 
Email: [email protected].


Table of Contents

I. Authority and Background
II. Discussion
III. Public Participation

I. Authority and Background

    Title III, Part C \1\ of the Energy Policy and Conservation Act of 
1975 (EPCA), Public Law 94-163 (42 U.S.C. 6311-6317, as codified), 
Public Law 95-619, Title IV Sec.  441(a), sets forth various provisions 
designed to improve energy efficiency for consumer products and certain 
commercial and industrial equipment and established the ``Energy 
Conservation Program for Certain Industrial Equipment'' (hereafter 
referred to as ``covered equipment'').\2\ The Energy Policy Act of 1992 
(EPACT 1992), Public Law 102-486, amended EPCA to add commercial 
packaged boilers as a type of covered equipment. (42 U.S.C. 6311(1)) 
The Energy

[[Page 9644]]

Independence and Security Act of 2007 (EISA 2007), Public Law 110-140, 
further revised EPCA to require that not later than six years after 
issuance of any final rule establishing or amending a standard,\3\ the 
Secretary of Energy must publish either a notice of determination that 
the standards for a given type of equipment do not need to be amended, 
or a notice of proposed rulemaking (NOPR) including new proposed 
standards. (42 U.S.C. 6313(a)(6)(C)(i)) Additionally, EPCA (as amended) 
requires DOE to update its test method each time the relevant industry 
test procedure is modified (42 U.S.C. 6314(a)(4)(B)) and to evaluate 
its test procedure for each covered class once every seven years (42 
U.S.C. 6314(a)(1)(A)).

    \1\ For editorial reasons, upon codification in the U.S. Code, 
Part C was redesignated Part A-1.
    \2\ All references to EPCA in this document refer to the statute 
as amended through the American Energy Manufacturing Technical 
Corrections Act (AEMTCA), Public Law 112-210 (Dec. 18, 2012).
    \3\ The AEMTCA amendments to EPCA later revised the timeframe 
for this review requirement for energy conservation standards to 
``[e]very 6 years.'' (42 U.S.C. 6313(a)(6)(C)(i))

    To fulfill these requirements set forth in EPCA, DOE has initiated 
a rulemaking to consider amended energy conservation standards for 
commercial packaged boilers, and, in parallel, DOE will evaluate the 
commercial packaged boilers test procedure found in the Code of Federal 
Regulations (CFR) at 10 CFR 431.86, Uniform test method for the 
measurement of energy efficiency of commercial packaged boilers. DOE 
issued a notice of public meeting and availability of the Framework 
Document on August 28, 2013, which was published in the Federal 
Register on September 3, 2013. 78 FR 54197. The Framework Document 
explains the issues, analyses, and process that DOE is considering for 
the development of energy conservation standards. Both in the Framework 
Document and in a public meeting held on October 1, 2013, DOE solicited 
public comment regarding its approach to the rulemaking process and 
identified particular issues for which DOE sought comment. The comments 
received included suggestions for the revision of the DOE test 
    In support of its test procedure rulemaking, DOE conducts in-depth 
technical analyses of publicly-available test standards and other 
relevant information. DOE continually seeks data and public input to 
improve its testing methodologies to more accurately reflect consumer 
use and to produce repeatable results. In general, DOE requests 
information, comment, and supporting data about representative and 
repeatable methods for measuring the energy use of commercial packaged 
boilers. In particular, DOE seeks comment and information about the 
topics below.

II. Discussion

    The DOE test procedure for commercial packaged boilers, set forth 
at 10 CFR 431.86, incorporates Hydronics Institute/Air-Conditioning, 
Heating, and Refrigeration Institute Standard BTS-2000 (Rev 06.07), 
Method to Determine Efficiency of Commercial Space Heating Boilers. 
This test procedure determines the steady-state efficiency of steam or 
hot water boilers operating at full load.\4\ However, through a review 
of equipment available in the market, DOE understands that the 
commercial packaged boiler industry is increasingly utilizing 
modulating burners. Modulating burners are capable of reducing the fuel 
input rate to more closely match the space heating demand. Because the 
current test procedure at 10 CFR 431.86 only measures steady-state 
efficiency at maximum firing rate, it does not account for differences 
in efficiency when the boiler is operated at lower firing rates. 
Therefore, DOE is considering test procedure amendments that would 
adopt part-load test conditions and measurements to more accurately 
reflect the efficiency of commercial packaged boilers that use 
modulating burner technology.

    \4\ Thermal efficiency is measured for all types of boilers 
except for oil-fired and gas-fired hot water boilers greater than 
2,500,000 Btu/h in rated capacity, for which combustion efficiency 
is used.

    In general, DOE requests comment, information, and data about 
adopting methodologies and measurements to determine part-load 
efficiency of commercial packaged boilers. Further, DOE particularly 
requests comment, information, and data about the following:
    (1) Should DOE only consider adding a measurement of commercial 
packaged boiler efficiency at the minimum fuel input ratio in addition 
to the maximum fuel input? If not, then at what fuel input ratio(s)--
fraction of maximum rated capacity--should the efficiency of a 
commercial packaged boiler be measured?
    (2) What are the appropriate inlet and outlet water temperatures 
(or the appropriate mean temperature and temperature difference between 
the inlet and outlet water temperatures ([Delta]T)) for part-load 
testing conditions of hot water boilers. Should this temperature 
difference ([Delta]T) be the same as when testing at full capacity?
    (3) How many hours can modulating burners be expected or designed 
to operate under part-load and full-load conditions, respectively, over 
the course of a year in a typical or average installation?
    (4) What benefits and burdens are associated with a part-load 
efficiency rating and combining the different operating points into a 
single weighted metric? What are potential ways to combine them?
    (5) When considering part-load operation, how would the measurement 
and inclusion of jacket, sensible, and infiltration losses be addressed 
in an annual weighted efficiency metric?
    (6) What, if any, would be the added test burden of accounting for 
part-load operation and associated measurement of jacket, sensible, and 
infiltration losses?
    DOE understands that current test conditions (i.e., temperatures 
and pressures) required under 10 CFR 431.86 and BTS-2000 may differ 
from typical operating conditions in the field and/or the conditions 
for which a boiler was designed. While laboratory testing conditions 
cannot necessarily duplicate field performance, they are intended to 
provide a reasonable basis for comparison of boiler efficiency and to 
generate repeatable results, while approximating actual operating 
conditions to the extent possible. DOE understands that testing 
conditions prescribed by BTS-2000 may warrant revision. Accordingly, 
DOE seeks input and comment about:
    (1) What are appropriate supply and return water temperatures for 
hot water boilers operating at full-load and the effect on steady-state 
efficiency (thermal or combustion) of this potential revision?
    (2) What is appropriate steam pressure for steam boilers operating 
at full-load and the effect on steady-state efficiency (thermal or 
combustion) of this potential revision? What are concerns, if any, 
about the impacts on the amount of water carry over and the system 
    (3) What design characteristics of boilers currently on the market 
would potentially prohibit testing (short-term operation) at the 
operating conditions currently prescribed by 10 CFR 431.86 and BTS-

III. Public Participation

    DOE invites all interested parties to submit in writing by the date 
specified previously in the DATES section of this RFI, comments and 
information on matters addressed in this document and on other matters 
relevant to DOE's consideration of amended test procedures for 
commercial packaged boilers.
    DOE considers public participation to be a very important part of 
the process

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for developing test procedures. DOE actively encourages the 
participation and interaction of the public during the comment period 
at each stage of the rulemaking process. Interactions with and between 
members of the public provide a balanced discussion of the issues and 
assist DOE in the rulemaking process. Anyone who wishes to be added to 
the DOE mailing list to receive future notices and information about 
this rulemaking should contact Ms. Brenda Edwards at (202) 586-2945, or 
via email at [email protected].

    Issued in Washington, DC, on February 7, 2014.
Kathleen B. Hogan,
Deputy Assistant Secretary for Energy Efficiency, Energy Efficiency and 
Renewable Energy.
[FR Doc. 2014-03299 Filed 2-19-14; 8:45 am]